The Institute of Childcare and Social Education



1 The Institute was set up to encourage high standards of services for children and young people, and in particular those with social, emotional and physical needs. It has campaigned for the universal registration for people working with children and young people, and it has published professional material, establishing the first international web magazine concerning children and young people to spread sound professional thinking.

2 The Institute is pleased to have the opportunity to contribute a response to the Green Paper, as it is timely that the role of children and young people in society should be given greater recognition, and it is necessary that their needs should be addressed fundamentally at this point.


General

3 The Green Paper contains a large number of proposals which are excellent. We support, for instance, the Government’s approach of taking a broad view of children’s needs, as evidenced in the five key outcomes (1.3), and placing the requirements of children with special needs within this wider context. Policy in this country has in the past frequently been developed in response to crises and scandals, and this has developed a pathological approach which has focused primarily on children’s problems, rather than on their strengths and their normal developmental needs.

4 The ICSE is also pleased to note that the needs of the workforce are receiving consideration. This is particularly important as the success of education, social education and childcare is totally reliant upon the skills and commitment of the people working with children. It is of course important to have sound legislation, systems and processes, but without a properly motivated workforce, all these measures will be ineffective.

5 It will be appreciated, however, that this response will focus on areas of concern, rather than the points of which the ICSE approves. The response consists of :

(a) responses to questions listed in the text;
(b) comments on the text of the Green Paper;
(c) other observations, for example on omissions and issues of principle.

We have only commented on issues where we believe we can make constructive contributions.


Responses to Questions

p. 37 Clusters of Schools

6 We were surprised to see no mention of childminding in the Green Paper. (It is not clear whether they are included in the figures in para. 2.8 and the chart on p. 84.) At any one time there are nearly 300,000 children in the care of about 90,000 childminders, and if a clustering system is to be developed to create effective local networks, it will need to incorporate all major forms of service for children and young people. In recent years measures developed both by the last Conservative Government and the current Government have tended to encourage parents to send young children to nursery schools and nursery classes rather than match the type of service to the child. Each type of provision offers different blends of education, social and personal care and play opportunities, and young children should be offered the type of provision required to match their level of maturity and other needs. We believe that legislation should create a level playing field in this respect.

p. 49 Social Services Decision-making with a view to Permanence

7 The key factor in decision-making is that the views of the children and their families should be respected. This does not mean that everything they ask for has to be granted, but their opinions have to be listened to and taken seriously. Even children who have been removed from home for several years often return to their parents on leaving care or they turn to a relative whom they consider dependable. Careful work in evaluating options before decisions are taken may save considerable suffering on the part of the children and waste of public resources over many years.

8 The fashion in social work over the last thirty years has been to assess children’s needs, arrange packages of care and close cases as quickly as possible, in order to maintain manageable case-loads and avoid the massive numbers of cases previously carried by child care officers. One of the outcomes has been an over-emphasis on short-termism. If the nation is to invest in its children, it needs to have a long-term view, considering their potential as adults as well as addressing their immediate needs. This will entail a fundamental shift of philosophy, and it is noticeable that the major crises and tragedies, such as Victoria Climbie’s, often occur in services where there are high staff turnover rates and an absence of consistent long-term supervision.

p. 49 The Families of Offenders

9 Prison sentences obviously disrupt family life. Even short sentences can lead to offenders losing jobs and accommodation and break up their relationships. Where sentences are short, consideration should be given to part-time penalties such as weekend prison, so that jobs can be retained.

10 In the case of those with longer sentences, a major problem is that of the movement of prisoners, which makes visiting and the maintenance of meaningful contact with families very difficult. While there are clearly issues of security which cannot be ignored, prison visiting is generally an unhappy experience for partners and children, and needs to be reviewed.

11 The price of imprisonment is paid by the prisoners’ families, and if further offending is to be reduced, the prisoners need to be re-integrated into society and encouraged to play acceptable roles. This entails the availability of employment, accommodation and social relationships for ex-prisoners. Families can therefore play a major role in reducing further offending by enabling ex-prisoners to play valued roles in society on their release, and it is in the interests of society as a whole - let alone the prisoners’ children - that links should be maintained.

p. 65 The Sharing of Information

12 A common approach should be taken to the sharing of information. The medical profession was founded before social work, and it established an ethic of professional confidentiality which was appropriate in the days when there were no other professionals with whom they needed to collaborate. Social work, like many other professions allied to medicine, has grown up at a time when collaboration between professions has been important. However, there is no intrinsic reason why medical information should be seen as more confidential than the personal data which other professions deal with. In all cases, information should only be shared when it is in the interests of the data subject.

p.80 Funding of Services

13 Over recent years there have been many new sources of funding, pilot schemes and partnership arrangements. The situation is now extremely complex, and much staff time is entailed in accessing funds. This in itself is a waste of resources, and any measure which simplifies these systems should be encouraged.

p. 80 Involving Children in Local Decision-making

14 We are aware that there is a campaign to obtain the vote for young people aged 16 or over, and we would support it. However, of greater importance than simply enlarging the electorate is encouraging the electorate to value the opportunity to vote. This, of course, is a wider issue for the electorate as a whole, but as far as young people are concerned, consideration should be given to the right to vote being conditional upon an expressed wish to vote, together with an assessment of the applicants’ understanding of democratic processes, so that achievement of the right to vote is seen as something positive to be earned and valued.

15 We understand that in France a modest budget is set aside in each town which is put under the control of the local children’s council. This is an idea worth considering also in England. The budget would need to be sufficient to allow for projects of real value to be undertaken.

16 It should not be assumed that children and young people only have an interest in matters that affect them directly, and it will encourage them to feel they have a stake in the wider society if they are consulted and involved in debates on all aspects of concern to the community.

p. 80 The Integration of Inspections

17 Quality assurance is important, and we accept the need for the inspection of services. However, the following considerations need to be borne in mind in devising the overall inspection framework :

(a) Every inspection entails hidden costs in the work that has to be undertaken by staff in participating in the inspection process, responding to the findings, and implementing requirements which may have agency-wide consequences. These costs are absorbed, or result in staff time being deflected from childcare. Indeed, we would recommend that a study should be undertaken to assess the amount of staff time taken by quality assurance systems of all sorts, in order to ensure that value is obtained for the cost of these exercises.

(b) Inspecting agencies sometimes work to different agendas and may give conflicting recommendations. In most cases, the recommendations which are applied are those which are specific, and social care concerns tend to lose out (for example in the application of fire precautions making premises unhomely or environmental health requirements preventing children from participating in cooking).

(c) The inspection processes which are used carry messages to the service providers, and there is a risk that in emphasising the need to meet requirements, risk-taking and experimentation in finding new imaginative ways of meeting children’s needs will be avoided.

(d) It is very rare that a formal inspection process uncovers serious shortfalls. (They usually come to light when disaffected staff or children’s families complain.) The main benefits of formal inspections are the setting of explicit standards, the checking that such standards are being met at the time of the inspections, and the creation of links with staff and children so that they know there is someone reliable to turn to in the event of problems.

(e) If inspectors are of the required calibre to undertake the job, it is a waste of their talents if they do not also advise on ways in which the services may be improved, however good the provision is. In the case of advice to good service providers, it should, of course, not be seen as constituting formal requirements.

p. 100 The Reform of the Workforce

18 Unlike the major professions, such as teaching or medicine, there is no overall identity in England for people who work with children and young people in need. In continental Europe there are professions usually known as social education or social pedagogy which cover a wide range of the people who work directly with children and young people in all types of setting, and who use those settings to help children resolve their problems and develop.

19 In the professions concerning children and young people in this country, workers are first and foremost specialists - a nanny, a youth worker, a residential social worker or a childminder, for example. This contrasts with other professions, where one is, for instance, first and foremost a teacher, who secondarily specialises in teaching infants or German or whatever.

20 It is our view that England would do well to follow the lead of continental Europe on this issue, and that a common overall identity, re-inforced by shared core training, would do much for the morale of people working in this field. To avoid misunderstanding of the word pedagogy, we suggest that the profession should be known as social education.

21 Over the last twenty years there has been little encouragement on the part of the Government for people working with children and young people to develop links with other countries, and England has got out of step. There are developments taking place to ensure consistency between qualifications in social education / pedagogy within the European Union which will leave England’s existing system awkwardly placed when compliance is required.

22 Examination of the career patterns of people who work with children and young people indicates that they frequently move between different settings to jobs which have different titles from those for which they were trained. A coherent training system covering the whole social education profession could ensure higher levels of training for those who move in this way.

23 If social education is recognised as the overall profession for people working directly with children and young people (excepting those in established professions), specialist training will of course still be needed to reflect different age groups within childhood and work in different settings.

24 Many of the issues concerning pay, support and management were addressed in the Howe Report, which established proper levels and standards for residential staff in local government. Unfortunately, the findings were immediately undermined by the privatisation of the services as authorities attempted to keep costs down. The Government will need to ensure that measures taken to attract and retain good workers in this field are not subjected to unforeseen factors which undermine their implementation.

25 As noted above, a key factor in this type of work is the maintenance of morale. Even with poor resources, committed and enthusiastic staff can achieve miracles, while well-resourced but unmotivated staff can do harm. This is not an argument for under-resourcing, but it simply underlines the importance of staff motivation, values and attitudes. If any of the systems (training, registration, inspection etc.) undermine staff morale, they do harm to the children and young people. Care needs to be taken therefore to test these systems against this criterion.

26 Accountability and integration are vital components in establishing a joined-up,
regulated and professional care service. As yet the care service is a long way from achieving these aims. At present we still have a service that is made up of a number of professional groups that are both qualified and unqualified, and that hold on to their professional identities and often have no understanding of each other's roles and areas of expertise.

27 The GSCC are still in the early days of registering workers and it will be some time before there is a fully regulated service. There will therefore be a two-tier system, which will be flawed until there is full implementation. While there is still a fractured service without one overall governing body giving leadership to all workers, accountability and integration nationally will not be achieved. Reform will not be achieved unless all workers feel that they have ownership of the process and are part of a cohesive care service.


Comments on the Text

Executive Summary Para. 17 Minister for Children, Young People and Families

28 There are those who would argue that the integration of services for children and young people and their families should have happened over fifty years ago, when the responsibility for services for children with social and other needs were split off from mainstream education under the Children Act 1948. It is argued that, while this led to a proper focus on the needs of children, it also rendered the services problem-focused, rather than holistic, and it fostered the assumption among some educationists that children with problems and needs were somehow abnormal and should be passed over to Children’s Departments, leaving the schools to provide schooling.

29 We support a holistic approach, and in the long run, we believe it will be better both for schools and for special services. However, the split has existed for so long that there are those who question whether these services can work successfully under the DfES, in view of their lack of the background expertise which they require to act as the umbrella organization overseeing their practice. It is our view that a fundamental change in philosophy will be needed throughout the education system in order for the integration to be successful.

Para. 1.8 Government Initiatives

30 The record of this Government in developing initiatives to help children has been quite outstanding. There is clearly still a long way to go, but the resources and creative ideas put into developing services have been commendable.

Para. 2.12 Truancy Sweeps

31 We are uneasy about the implications of truancy sweeps. If education were seen as attractive and valuable, such sweeps would not be necessary. Questions therefore need to be asked about the quality and perceived relevance of the education on offer. Furthermore, adult working patterns are quite different, and if children’s schooling were modelled on adult work (for which it is presumably meant to be a preparation), children would be free to take days off within their contracts of employment. Until these bigger philosophical questions are addressed, truancy sweeps can only be seen as a form of coercion to ensure conformity and reduce offending. We support the aim of reducing offending, but would not want coercive measures to be seen as a substitute for improved teaching and a more relevant curriculum.

Para. 2.20 Extended Schools

32 Whilst we are totally in support of this initiative, we have a concern over the staffing of
extended schools. Quite clearly these schools will need to be adequately staffed. The staff will need to be experienced and able to cope with a wide variety of scenarios and problems that the children may bring to school. Staff offering social care will be faced with many of the complex issues that social workers and residential care workers have to deal with on a daily basis.

33 A recruitment drive will be needed which gives a true picture of what being a care worker really entails. For this initiative to offer safe and sound provision, the Government will need to draw on the experiences of residential workers and social workers, provide accurate information when recruiting and provide thorough and rigorous training.

Para. 2.46 Family Treatment Units

34 It is our experience that residential family treatment units can provide a holistic approach to the problems experienced by families, providing accommodation, helping to deal with financial problems such as rent arrears, offering counselling at points of crisis (not just in office hours) and helping with childcare advice and practical help. Such centres can be highly cost-effective in dealing with families with major problems.

Para. 3.3 School-based Services

35 We support the Government’s intention to base services on schools for two reasons :

(a) For most parents schools provide an acceptable basis for delivering other services which they might consider stigmatising.

(b) It will broaden the roles of schools and free them of limiting constraints if they can be seen as centres of life-long learning which are of help to their communities as a whole.

Para. 3.8 Parents with Disabled Children

36 Acting as an employer is a complex business, and many people are unhappy to take on the role of employer. Among other things, it clouds the relationship between parents and their auxiliary helpers, which needs to be a co-operative partnership. It may be that voluntary bodies could act as employers on behalf of parents.

Para. 3.15 Children’s Needs

37 Ideally, every child should have a loving family, but a significant proportion of young people requiring extra-familial care do not want to have to face living within the constraints of a family, and if this paragraph is intended to argue for a generalised preference for adoption or fostercare as against residential care, it is based on false premises.

Para. 3.26 Residential Care

38 It is our view that this reference to residential care is bald and negative. There are good residential services which provide placements of choice for children and young people. Over recent decades, despite arguments to the contrary in documents such as the Wagner Report, it has been fashionable to criticise residential child care, and in consequence it has often been neglected and under-resourced, and staff have been inadequately trained.

39 There are signs that picture is changing, as the recent National Children’s Bureau research suggests, but further encouragement and support are needed if children are to get the services they need. It is time to talk up residential child care, rather than approach it negatively. If it is of good quality, it has much to offer children and young people, and can transform their lives.

Para. 4.3 Common Information Systems

40 The concept of establishing an all-embracing information system is attractive for a number of reasons, but in view of the failure of recent national computer schemes to deliver sound information and meet time targets, we believe that in this respect the Government should make haste slowly. It is necessary to debate the information required and any problems which the system might face ethically or technically, so that when it is set up, it will have the support and understanding of all those who will be involved in making it work. Otherwise there is a real danger that it could become a fiasco, which would discredit the concept and set back its development.

Para. 4.3 Flagging

41 There is also an argument for flagging the records of abusive adults.

Para. 4.4 Professional and Cultural Barriers

42 Research has indicated that professionals often put enormous energy into preserving their territories, and in forming alliances with other professions against third parties. While the Green Paper also refers to legal and technical barriers, the question of motivation is the most important. Good collaboration with a view to meeting children’s needs has to be seen by all the professionals involved as more rewarding than fighting to defend territory. To achieve this will be very difficult, but it is likely to be the biggest determinant of success.

43 A major problem in collaboration between professions is that participants in meetings often have differing status and authority within their services. For example, in Area Child Protection Committees, the police representative may be a specialist middle-ranking officer seconded to this field for three years, the social work representative may be a principal officer within the social services hierarchy who has specialised in this field for many years, the general practitioner may be the only one in the area prepared to put time into participating in the ACPC and having no authority to speak for his peers, while the health visitor may have been delegated to attend and may carry other responsibilities. Such a system - or its replacement - will only knit together the services represented with a lot of hard work. Simply making the body statutory will not solve the disjunctions between professions.

Para. 4.21 Terminology

44 There is possibly some looseness of terminology here. The paragraph refers to a lead professional role and to a keyworker, which appear to be interchangeable terms. It might be helpful to maintain the lead professional term as described here, and limit keyworker to the role of the person within each participating service who has a special interest in, or responsibility for, a child. For example, a social worker might be the lead professional for a child who attends a day nursery where one of the nursery staff is the keyworker within the nursery staff team.

Para. 5.1 Overlap

45 The problem described here is well-known, and is partly one of language. If a child’s problems are described in medical or educational terms, the associated solutions will follow, and the type of service offered will reflect the initial assessment. A common language is needed to ease this problem, perhaps created through shared training.

Para. 5.6 Vision

46 The logic of this vision is that services for children and young people should be administered as independent agencies and become entirely independent of local authorities. Where an agency such as a local authority has multiple responsibilities it has to prioritise, and some of its responsibilities are subordinated to others. At times, local authority children’s services have been subordinated to other pressing needs. This can only be avoided if agencies have single purposes.

47 The fundamental problem is that there appears to be no coherent rationale for the organisation of services nationally, regionally and locally. Until this is resolved, arrangements are likely to be pragmatic compromises of the sort outlined here.

Para. 5.2 Holistic Responses

48 We are very supportive of a holistic approach to children’s needs. The question is whether meeting the identified needs will be properly funded.

Para. 5.3 Restructuring

49 It remains to be seen whether restructuring will be effective. There are those who argue that the combined structures being set up now should have been introduced in 1948, rather than separate Children’s Departments. There are also those who believe that the Barclay Report’s vision of localised community services for all people in need would provide a stronger basis than specialist children’s services. We accept that the Government is heading in the direction of specialist children’s services, but we remain sceptical about the value of any re-organisation.

50 For decades Governments appear to have been oblivious to the damage caused by restructuring, as the history of the National Health Service has shown, and there remains a belief that reshaping services structurally will improve matters. Restructuring tends to absorb the energies of the professionals affected for a substantial period, it results in the early retirement of senior professionals, and it is usually highly disruptive, as new structures, systems and policies are introduced. Worst of all, it is the service users who end up as the casualties. The Government would do well to research the impact of the changes on service users in this respect.

Para. 5.8 Directors of Children’s Services

51 In considering candidates for the posts of Director of Children's Services, it will be important to ensure that the process is seen as the creation of a new service, and not a take-over of one service by another, either locally or nationally. Otherwise, where the Director has a background in either education or social services, there could be a conflict of traditional loyalties, and a section of the new multi-disciplinary team could have problems identifying with the management. Equally, at national level, confidence in the aim of interprofessional partnership and multi-disciplinary working would be undermined by excessive representation at senior level by any one professional group.

Para. 5.11 Lead Councillors

52 Lead Council Members must have a sound understanding and knowledge of the services for which they will be responsible, and to ensure a consistent approach to the implementation of legislation across the country, they will require training, organised nationally, and a system offering support and co-ordination thereafter.

Para. 5.38 Star Ratings

53 The system described in this paragraph is sterile. Star ratings cannot reflect all aspects of the work of large workforces, and they are judgements that relate only to a single point in time, in themselves offering no real help in telling people how to improve. Workers simply feel undermined if they have a low score, or praised if they have a high one. It is of much greater help if organisations - however good or bad they are - can be helped to understand how to improve their practice. This is an ongoing process that never ends, and relates to the reality of service-providing with all its ups and downs.

Para.6.8 Social Work Time

54 We have been informed that the amount of time spent by social workers in direct client contact is 13 - 16% of the full working time. We recommend that research is undertaken to calculate the amount of time spent on key elements of the work (client contact, training, administration, quality assurance etc.) by all main groups working with children and young people. We suspect that considerable savings could be made by simplifying planning processes, funding streams, record-keeping and inspection methods, so that they entail less staff time. The proportion of total staff time spent in face to face contact with clients could be used as a key performance indicator.

Para. 6.8 Housing

55 If assistance with housing were provided in areas where it is expensive, this could be of great assistance in the recruitment and retention of staff.

Para. 6.16 Registration of Workforce

56 At present the workforce is in the main unregistered and therefore unregulated. It is fractured into a number of different job types, which are treated differently and are overseen by a number of governing bodies, professional associations, and trades unions. The General Social Care Council has started to make inroads to developing a regulated and uniform care service, but they are still a long way off from achieving this, and even viewing the situation optimistically, it would seem likely that it will take more than a decade to register the current workforce. Till the work is complete, there is the risk that incompetent practitioners and abusers will move to unregulated areas, and it is our view that finance needs to be made available to accelerate the process.

Para. 6.30 Recruitment Campaign

57 We support the establishment of a recruitment campaign, but attempts so far have to advertise for care workers have been at best pathetic and at worst dangerously misleading. Rather than depicting a job that requires knowledge, understanding, expertise, the ability to manage extremely stressful situations and a high degree of professional practice, they have given the impression that as long as you can make paper hats and play party games you can become a care worker, hardly a way of portraying an "attractive and high status career".

Para. 6.41 Staff Training

58 It is noted that of the six core components of training, only the last one relates to the task of working directly with children and young people. It would be possible to have an academic understanding of the first five elements and be incompetent as a practitioner. The sixth rightly refers to listening to children and young people, but the phrase involving them is too weak to cover all the aspects of communication, shared activities, group work, personal care and counselling which it needs to cover.

59 The essential aspect of good training for people working with children and young people is that it needs to be a combination of theory and practice, so that each informs the other. Theory which cannot be applied in practice is useless, and practice uninformed by theory risks being uninformed and ill-considered. The key to good training, therefore, is that those teaching academic subjects need a good grounding in practice, and practice teachers need to be able to articulate relevant theory.


Other Observations

Attitudes towards Children

60 We are concerned that in the country as a whole there is often a sentimentalised attitude towards little children, who are seen as vulnerable and in need of protection, and a hypercritical demonising approach towards teenagers, who are seen as threatening and antisocial. These stances have been evidenced also in Government initiatives.

61 It is our view that children and young people should be treated with respect, and that they in turn should be expected to treat other members of society with respect. When these expectations have been established, it will be possible to form realistic views of the groups which make up society, rather than the harmful images which are currently prevalent. The Government should take a lead on this matter in establishing respect, rather than by playing to the emotions.

Juvenile Justice

62 It is our view that the omission of juvenile justice from the Green Paper is a fundamental mistake. Young people who offend are still subject to the Children Act 1989, as the recent case brought by the Howard League demonstrated. It is our view that all services for children and young people should be considered as a whole.

63 This would mean, for example, that Children’s Boards should be required to pay for young offenders placed in penal establishments. Financial responsibility would be an incentive to develop measures to reduce juvenile offending, and prevent the off-loading of offenders onto the penal system.

A Wider Debate Needed

64 The Green Paper has made a useful contribution to discussion of issues which affect children and young people, and it has been helpful to focus on their key outcomes, as well as the legislative and administrative structures required to respond to Lord Laming’s report. However, the Green Paper betrays a gap between the statement of general concepts and the specific measures proposed. We see this Paper as only the beginning of a much bigger debate which is needed in order to reconsider the role of children and young people in society.

65 We live in a mobile society, which is largely stratified by age. Is this what we want? Is it an effective way to bring up children? Could new technology be used to reshape the education system fundamentally? Is the current pattern of education relevant to the twenty-first century? What type of society and work patterns are we preparing children for? Should children and young people have a greater say in decision-making? Can we re-engender interest in democratic processes among young people? How can we best support families in bringing up children?

53 There are so many fundamental questions relating to the roles of children and young people in today’s society that we recommend the establishment of a Royal Commission as a focus for a major national consideration of the subject. The initiatives taken by the Government have been of great benefit to children and their families, but it is now time to take stock and ensure that these measures are being effective, and to do that, it is necessary to be clear about the criteria by which success is to be judged. As part of this process, the Green Paper has fulfilled a useful function, but it should not be seen as the end of the debate.


References

? (known as the Howe Report)
A local government working party report which analysed the nature of the residential task, and examined support structures such as the pay and management of residential staff.

A Positive Choice (known as the Wagner Report) (1988) HMSO
A working party report which addressed current concerns about residential care and which argued that it should be viewed positively.

Social Workers : Their Roles and Tasks (known as the Barclay Report) (1982) Bedford Square Press
Still the most recent report on the nature of social work, in which the majority report argued for the development of community social work,

Better than you think (2003) National Children’s Bureau
Recent research which examined the residential childcare workforce morale, turnover and other factors.

A Golden Opportunity (c. 2000) The Residential Forum (obtainable from the Social Care Association)
A fundamental analysis of the rationale and content of training for residential child care workers

The Radisson Report (2000) The Social Education Trust
An analysis of the concepts entailed in social education and social pedagogy which advocates their adoption in this country.

 

 


In the first book of the Bible, Guinessis, God got tired of creating the world, so he took the Sabbath off.

From a child's bible study answer




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